Behind Power, One Principle as Bush Pushes Prerogatives

WASHINGTON, Dec. 16 - A single, fiercely debated legal principle lies behind nearly every major initiative in the Bush administration's war on terror, scholars say: the sweeping assertion of the powers of the presidency.

From the government's detention of Americans as "enemy combatants" to the just-disclosed eavesdropping in the United States without court warrants, the administration has relied on an unusually expansive interpretation of the president's authority. That stance has given the administration leeway for decisive action, but it has come under severe criticism from some scholars and the courts.

With the strong support of Vice President Dick Cheney, legal theorists in the White House and Justice Department have argued that previous presidents unjustifiably gave up some of the legitimate power of their office. The attacks of Sept. 11, 2001, made it especially critical that the full power of the executive be restored and exercised, they said.

The administration's legal experts, including David S. Addington, the vice president's former counsel and now his chief of staff, and John C. Yoo, deputy assistant attorney general in the Office of Legal Counsel of the Justice Department from 2001 to 2003, have pointed to several sources of presidential authority.

The bedrock source is Article 2 of the Constitution, which describes the "executive power" of the president, including his authority as commander in chief of the armed forces. Several landmark court decisions have elaborated the extent of the powers.

Another key recent document cited by the administration is the joint resolution passed by Congress on Sept. 14, 2001, authorizing the president to "use all necessary and appropriate force" against those responsible for Sept. 11 in order to prevent further attacks.

Mr. Yoo, who is believed to have helped write a legal justification for the National Security Agency's secret domestic eavesdropping, first laid out the basis for the war on terror in a Sept. 25, 2001, memorandum that said no statute passed by Congress "can place any limits on the president's determinations as to any terrorist threat, the amount of military force to be used in response, or the method, timing and nature of the response."

That became the underlying justification for numerous actions apart from the eavesdropping program, disclosed by The New York Times on Thursday night. Those include the order to try accused terrorists before military tribunals; the detention of so-called enemy combatants at Guantánamo Bay, Cuba, and in secret overseas jails operated by the Central Intelligence Agency; the holding of two Americans, Jose Padilla and Yaser Esam Hamdi, as enemy combatants; and the use of severe interrogation techniques, including some banned by international agreements, on Al Qaeda figures.

Mr. Yoo, now a law professor at the University of California, Berkeley, declined to comment for this article. But Bradford A. Berenson, who served as associate counsel to President Bush from 2001 to 2003, explained the logic behind the assertion of executive power.

"After 9/11 the president felt it was incumbent on him to use every ounce of authority available to him to protect the American people," Mr. Berenson said.

He said he was not familiar with the N.S.A. program, in which the intelligence agency, without warrants, has monitored international telephone calls and international e-mail messages of people inside the United States. He said that he could not comment on whether the program was justified, but that he believed intelligence gathering on an enemy was clearly part of the president's constitutional war powers.

"Any program like this would have been very carefully analyzed by administration lawyers," Mr. Berenson said. "It's easy, now that four years have passed without another attack, to forget the sense of urgency that pervaded the country when the ruins of the World Trade Center were still smoking."

But some legal experts outside the administration, including some who served previously in the intelligence agencies, said the administration had pushed the presidential-powers argument beyond what was legally justified or prudent. They say the N.S.A. domestic eavesdropping illustrates the flaws in Mr. Bush's assertion of his powers.

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"Obviously we have to do things differently because of the terrorist threat," said Elizabeth Rindskopf Parker, former general counsel of both N.S.A. and the Central Intelligence Agency, who served under both Republican and Democratic administrations. "But to do it without the participation of the Congress and the courts is unwise in the extreme."

Even if the administration believes the president has the authority to direct warrantless eavesdropping, she said, ordering it without seeking Congressional approval was politically wrongheaded. "We're just relearning the lessons of Vietnam and Watergate," said Ms. Parker, now dean of the University of the Pacific McGeorge School of Law.

Jeffrey H. Smith, who served as C.I.A. general counsel in 1995 and 1996, said he was dismayed by the N.S.A. program, which he said was the latest instance of legal overreach by the administration.

"Clearly the president felt after 9/11 that he needed more powers than his predecessors had exercised," Mr. Smith said. "He chose to assert as much power as he thought he needed. Now the question is whether that was wise and consistent with our values."

William C. Banks, a widely respected authority on national security law at Syracuse University, said the N.S.A. revelation came as a shock, even given the administration's past assertions of presidential powers.

"I was frankly astonished by the story," he said. "My head is spinning."

Professor Banks said the president's power as commander in chief "is really limited to situations involving military force -- anything needed to repel an attack. I don't think the commander in chief power allows" the warrantless eavesdropping, he said.

Mr. Berenson, the former White House associate counsel, said that in rare cases, the presidents' advisers may decide that an existing law violates the Constitution "by invading the president's executive powers as commander in chief."

The Foreign Intelligence Surveillance Act of 1978 typically requires warrants for the kind of eavesdropping carried out under the special N.S.A. program. Whether administration lawyers argued that that statute unconstitutionally infringed the president's powers is not known.

But Mr. Smith, formerly of the C.I.A., noted that when President Carter signed the act into law in 1978, he seemed to rule out any domestic eavesdropping without court approval.

"The bill requires, for the first time, a prior judicial warrant for all electronic surveillance for foreign intelligence or counterintelligence purposes in the United States" if an American's communications might be intercepted, President Carter said when he signed the act.

By asserting excessive powers, Mr. Smith said, President Bush may provoke a reaction from Congress and the courts that ultimately thwarts executive power.

"The president may wind up eroding the very powers he was seeking to exert," Mr. Smith said.